The Cancun Agreements - UNFCCC COP 16/CMP 6 Quick Guide
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Network of Regional Governments
for Sustainable Development
The Cancun Agreements
UNFCCC COP 16/CMP 6
Quick Guide
April 2011The Network of Regional Governments for Sustainable Development, nrg4SD is an
international organisation representing over 600 subnational governments, namely
federated states and regional governments, at the global level. The network
promotes understanding, collaboration and partnerships in sustainable development
and seeks greater international recognition of subnational government’s important
contribution towards sustainable development. A member of the Organisations des
Régions Unies/Forum Global d’Associations de Régions (ORU/FOGAR), nrg4SD is the
voice of ORU/FOGAR in the field of sustainable development.
www.nrg4sd.org nrg4sd@nrg4sd.org
nrg4SD members interested in the United Nations Framework Convention for
Climate Change matters may also find the following nrg4SD products useful:
- Subnational governments at the forefront of climate action – Advocacy Paper
- Regions: Conscientious and influential partners in climate action - European
Advocacy Paper
- Overview on the main outcomes of UNFCCC COP 16/CMP 6 Cancun
- A Tale of 3 Success Stories – A commentary at the closing of Cancun
- On the Road to Durban – Overview on developments towards UNFCCC
COP17/CMP7
- Quick guide to key dossiers towards Durban
- Rough Guide to UNFCCC and the Kyoto Protocol
- Glossary of UNFCCC and Kyoto Protocol
This is part of the nrg4SD Quick Guide series.
The content of this document does not necessarily reflect the detailed opinion of each
member of nrg4SD.
© Copyright nrg4SD – Network of Regional Governments for Sustainable Development
Programme, April 2011. All rights reserved
www.nrg4sd.org
1General outcomes of the Cancun Agreements
Negotiations in Cancun were successful in the view that they dealt with several
issues that were blocked in COP15/CMP5 Copenhagen and delivered the shape of a
comprehensive international system for collective action to deal with climate
change. More details on how to make this system operate to effect will have to be
further fleshed out among Governments during 2011 in the run up to COP17/CMP7
in Durban, South Africa at the end of this year.
Special recognition deserves the diligence with which the Mexican Presidency carried
out its role. Adding up to the continuous efforts at negotiations throughout the year,
Mexico worked tirelessly during the fortnight of COP16/CMP6 to re-establish trust in
the process and move on towards a ‘compromise text’ in a ‘transparent and
inclusive’ manner. The Mexican Presidency was also particularly committed to
listening to and including the voices of all stakeholders. Last but not least, the
efficient logistics deployed by the State of Quintana Roo ensured a well-organised
and relaxed atmosphere.
The outcomes of this international negotiation sessions are significant because:
The Cancun Agreements form the basis for the largest collective effort the world has
ever seen to reduce (mitigate) emissions, in a mutually accountable way, with
national plans captured formally at international level under the banner of the
UNFCCC.
The final Cancun text agrees on:
The rise of emissions reduction pledges. Even national delegations traditionally
opposed to this type of declaration such as USA or China agreed to the principle of
further reducing greenhouse gas (GHG) emissions.
A process of international assessment on the implementation of the economy-
wide emission reduction targets submitted by all industrialised countries in 2010.
A compilation has been officially published by the UNFCCC Secretariat and will
be followed-up under the Convention.
Regular reporting will be boosted by means of detailed annual inventories of
GHG emissions and of biannual progress reports in emission reductions.
A formal international registry of National Appropriate Mitigation Actions
(NAMAs), coupled with strengthening transparency around their elaboration.
2 The registry will have separate sections: one for NAMAs from developing
countries requiring international support and a separate one for NAMAs which
do not request international support.
Developing countries will provide information on the actions for which they
are seeking support, whereas industrialised countries will provide information
on available support for these actions.
Supported actions will be measured, reported and verified internationally, so
aid efficiency can be monitored. For domestically supported actions this will
be done at the national level.
Biennial reporting on mitigation progress by developing countries in a
differentiated way to that of industrialised countries.
Encouraging low-carbon development plans, including for developing countries.
Strengthening Kyoto Protocol’s Clean Development Mechanism (CDM) to drive
major investments and technology into environmentally sound and sustainable
emission reduction projects, by means of:
A special focus on developing countries with less than 10 CDM initiatives
registered.
Allowing carbon capture and storage projects in the CDM, provided that a
range of technical issues and safety requirements are resolved and fulfilled.
Continue emissions trading and joint-implementation mechanisms in a second
commitment period of the Kyoto Protocol, as a way to encourage clean
technology investment from industrialised countries into developing ones, while
allowing the former to use these mechanisms to meet their own emission
reduction targets.
Establishing one or more new market-based mechanisms to both enhance and
promote the cost-effectiveness of mitigation actions.
Under land use, land-use change and forestry (LULUCF), a call for the submission
of reference levels for GHG accounts under forest management. The controversy
had always been that countries were including forest management in their GHG
accounts without any reference levels; thus getting carbon credits from GHG
removals that occur naturally thanks to the absorption of carbon dioxide by
forests. The agreement provides for the use of a scientifically sound approach and
an internationally assessed set of data in order to regulate GHG emissions and
removals of forest-related activities.
Further discussions and a work programme to address the potential negative
economic or social consequences of mitigation actions for other countries.
The need to boost information-sharing, awareness-raising and public education
on climate change.
3The Cancun Agreements include the most comprehensive package ever agreed by
Governments to help developing nations deal with climate change. This
encompasses finance, technology and capacity-building support to help them meet
urgent needs to adapt to climate change and to speed up their plans to adopt
sustainable paths to low emission economies which can also resist the negative
impacts of climate change.
COP16/CMP6 reached agreements to establish:
A separate section of the mitigation registry for developing countries to detail
their voluntary plans to limit GHG, as well as the support they need in form of
technology, finance or capacity-building to achieve them, and the supporting
action to match these needs. The registry will be maintained by the UNFCCC
Secretariat. During 2010, many developing countries submitted their NAMAs, with
appropriate and adequate support from industrialised countries in the form of
technology cooperation, finance and help in capacity-building. A compilation of
these NAMAs has been officially published by the UNFCCC Secretariat.
A loan scheme to encourage CDM project activities in developing countries that
have fewer than 10 such activities registered.
More transparent and regular information on the funds dedicated to the Fast-
start finance for developing countries (pledge of USD 30 billion by 2012) and how
to access them.
An Adaptation Framework, in order to strengthen action on adaptation in
developing countries through international cooperation. The framework will:
aim to achieve better planning and implementation, increased financial and
technical support; strengthen and/or establish regional centres and networks;
boost research, assessments and technology cooperation on adaptation, as
well as strengthen education and public awareness.
be complemented by an Adaptation Committee to promote stronger action on
adaptation by means of technical support and guidance to countries,
knowledge-sharing and synergy between stakeholders.
A process for least developed countries (LDCs) and other interested developing
countries to formulate and implement national adaptation plans (NAPs)
identifying and addressing their medium and long-term adaptation needs.
A work programme on how best to address loss and damage from climate
change impacts in developing countries. During the next two years, countries will
consider options on how to manage and reduce the climate change risk to
developing nations. This includes the possible development of a climate risk
insurance facility. It also includes ways to address rehabilitation from the impacts
of such climate change-related events as sea-level rise.
4 A framework of parameters and financial incentives for countries not to
deforest, under the United Nations Collaborative Programme on Reducing
Emissions from Deforestation and Forest Degradation in Developing Countries
REDD +.
A Green Climate Fund intended to deploy $100bn a year by 2020 to protect poor
nations against climate impacts and assist them with low-carbon development.
The Fund shall:
function under the guidance of, and be accountable to COP;
support projects, programmes, policies and other activities in developing
countries using thematic funding windows;
be governed by a Green Climate Fund Board, comprising 24 members with
equal representation from developing and developed countries;
have its assets administered by a trustee. The final compromise that managed
to unblock this thorny question establishes that the World Bank will serve as
the interim trustee. This will be reviewed 3 years down the operationalisation
of the fund.
be supported by a professional independent secretariat.
be designed by a Transitional Committee of 40 members, with 15 members
from developed country Parties and 25 members from developing country
Parties, all having the necessary experience and skills, notably in the area of
finance and climate change. COP16 also requested the UNFCCC Secretariat to
enable relevant United Nations agencies, international financial institutions
and multilateral development banks, along with the Secretariat and the Global
Environment Facility (GRF), to second staff to support the work of the
Transitional Committee.
A Standing Committee on long-term finance under COP, which will assist on
mobilization from a mix of public and private sources, delivery and verification of
the long-term finance under the Green Climate Fund.
Increased capacity-building support to developing countries by strengthening
relevant institutions, networks and climate change communication, education,
training and public awareness at all levels. Included in this is increased sharing of
information.
A Technology Clearing house Mechanism to strengthen technology development
and transfer, which will be accountable to the COP and should be fully operational
in 2012. This mechanism includes:
A Technology Executive Committee (TEC), which will: (i) strengthen the
development and deployment of new technologies, (ii) strive to increase
public and private investment in technology development and transfer, (iii)
assist in providing an overview of needs for the development and transfer of
5technologies for mitigation and adaptation, and (iv) recommend policies and
actions to boost technology cooperation.
A Climate Technology Centre and Network (CTCN) to: (i) facilitate national,
regional, sectoral and international technology networks, organisations and
initiatives, (ii) mobilise and enhance global clean technology capabilities, (iii)
provide direct assistance to developing countries, (iv) facilitate prompt action
on the deployment of existing technologies, (v) encourage collaboration with
the private and public sectors, as well as with academic and research
institutions, and (vi) to develop and transfer emerging technologies to the
best effect.
The Cancun Agreements include a timely schedule for UNFCCC nations to review the
progress they make towards their expressed objective of keeping the average global
temperature rise below 2°C.
Governments agreed to continue work on identifying both a goal for substantially
reducing global emissions by 2050 and a time frame for the peaking of global
emissions.
The first review of progress to identify whether the world is meeting the
necessary timetable, or whether it will require stronger action, will start in 2013
and be completed by 2015. The review will be based on the latest scientific
information and on progress made in combatting climate change.
6Specific outcomes for subnational
governments of the Cancun Agreements
As we have seen in the previous section, following from the stagnation of
multilateral climate change negotiations in COP15 Copenhagen, the Cancun
Agreements represent progress for the international community, both in terms of
regaining trust in multilateralism and of improving the international climate action
framework.
These two blocks of concrete progress are completed by a frank success for the
cause of subnational governments in general, and for nrg4SD and the other
organisations part of the Major Group for local government and municipal
authorities in particular.
After years of intense advocacy work and direct collaboration with UNFCCC bodies,
the Cancun Agreements enshrine for the first time ever in a UNFCCC official
agreement the full recognition of the crucial role of both local and subnational
governments as ‘government stakeholders’ in global climate change efforts. More
specifically:
Decision 1/CP16 on “Outcome of the work of the Ad Hoc Working Group on long-
term Cooperative Action under the Convention (AWG-LCA)” - This decision
recognises the crucial role of subnational governments in different areas of climate
action. More specifically under the shared vision for a long-term cooperative action,
it refers to the engagement with all major groups and particularly which local and
subnational governments as ‘governmental stakeholders’.
Page 3 - I. A shared vision for long-term cooperative action
7. ‘The Conference of the Parties recognizes the need to engage a broad range of
stakeholders at the global, regional, national and local levels, be they government,
including subnational and local government, private business or civil society,
including youth and persons with disability, and that gender equality and the
effective participation of women and indigenous peoples are important for effective
action on all aspects of climate change’.
This mention was introduced into the international negotiations for the first time in
the preamble of the Copenhagen texts in December 2009. Just before the start of
COP16 Cancun, the new draft issued by the Chair had withdrawn all elements of the
preamble in order to favour consensus among parties. Following from the intense
7advocacy work of all members of the local government and municipal authorities
Mayor Group, where nrg4SD sits, the final text put forward by the Mexican
Presidency on the last night and finally adopted by the COP exceeds the expectations
of the LGMA. The mention is not only brought back into the text, but it is actually
incorporated strongly into an operative paragraph of a decision, when earlier it had
been a sentence of the preamble.
- Page 4 - II. Enhanced action on adaptation
14. ‘The Conference of the Parties invites all Parties to enhance action on adaptation
under the Cancun Adaptation Framework, taking into account their common but
differentiated responsibilities and respective capabilities, and specific national and
regional development priorities, objectives and circumstances, by undertaking, inter
alia, the following:
(a) Planning, prioritizing and implementing adaptation actions, including projects
and programmes, and actions identified in national and subnational adaptation
plans and strategies (…).
(e) Page 5 - Enhancing climate change related disaster risk reduction strategies,
taking into consideration the Hyogo Framework for Action, where appropriate,
early warning systems, risk assessment and management, and sharing and
transfer mechanisms such as insurance, at the local, national, subregional and
regional levels, as appropriate’
18. Page 5 - ‘The Conference of the Parties requests developed country Parties to
provide developing country Parties, taking into account the needs of those that are
particularly vulnerable, with long-term, scaled-up, predictable, new and additional
finance, technology and capacity-building, consistent with relevant provisions, to
implement urgent, short-, medium- and long-term adaptation actions, plans,
programmes and projects at the local, national, subregional and regional levels, in
and across different economic and social sectors (…)’.
20. Page 5 – ‘The Conference of the Parties decides to hereby establish an
Adaptation Committee to promote the implementation of enhanced action on
adaptation in a coherent manner under the Convention, inter alia, through the
following functions:
(b) Strengthening, consolidating and enhancing the sharing of relevant
information, knowledge, experience and good practices, at the local, national,
regional and international levels (…)’.
- Page 22 – C. Capacity Building
130. ‘The Conference of the Parties decides that capacity-building support to
developing country Parties should be enhanced with a view to strengthening
endogenous capacities at the subnational, national or regional levels, as appropriate
(…)’.
8Ad Hoc Working Group on Further Commitments for Annex I Parties under the Kyoto
Protocol (AWG-KP), Decision 3/CMP6 (EN, ES, FR) on further guidance relating to
the Clean Development Mechanism Commitments - Building upon para. 55.c of
Decision 2/CMP5 in Copenhagen on the role of local government in improving the
potential of CDM, in this decision subnational governments are referred to and for
the first time ever a UNFCCC - KP decision refers to the concept of ‘city’ directly (the
latter as a result of the re-introduction by the Jordanian delegation).
- Page 2 – ‘The Conference of the Parties, recalling that standardized baselines under
the clean development mechanism should be broadly applicable, provide a high level
of environmental integrity and take into account specific national, subnational or
international circumstances, as appropriate’.
- Page 3 – I. General – 4. ‘The Conference of the Parties, also requests the Executive
Board to reassess its existing regulations related to programmes of activities in order
to:
(b) Simplify the application of programmes of activities to applying multiple
methods and technologies, including for possible city-wide programmes (…)’.
Document FCCC/SBI/2000/L31 – The Subsidiary Body for Implementation, when
discussing arrangements for intergovernmental meetings recognises (page 1) ‘the
important role and value of the participation of all stakeholders, both governmental
and non-governmental, in the UNFCCC process in accordance with Article 7,
paragraph 6, of the Convention’.
The introduction of the Mexico City Pact and carbonN Cities Climate Registry as a
global response of local governments to measurable, reportable, verifiable (MRV)
climate action.
In November 2010, ICLEI and local governments demonstrated a high level of
commitment to climate action when they gathered at the World Mayors Summit on
Climate 2010 in Mexico City on 21 November 2010. Signed by more than 140 cities
representing more than 170 million citizens, the Summit resulted with the adoption
of the Mexico City Pact and carbonN Cities Climate Registry as the global reporting
mechanism for measurable, reportable, verifiable local climate action.
9Sources for more information
UNFCCC United Nations Framework Convention on Climate Change UNFCCC
COP16/CMP6 page, including links to all official documents and webcasts
COP16/CMP6 overview, including detailed info on 2011 dossiers and
latest developments
Meetings – meetings archive
Date base of documents
National reports
Newsletter
UNFCCC UNFCCC constituency for Local Government and Municipal Authorities
LGMA UNFCCC LGMA
constituency nrg4SD
ICLEI – Focal Point for LGMA
UCLG
UNEP United Nations Environment Programme UNEP
Intergovernmental Panel on Climate Change IPCC
Emissions gap report
Climate Change Programme
News
European Climate and Energy Package
Union EU Second European Climate Change Programme
International Climate Finance – EU actions
Emissions Trading Scheme (ETS) and Effort Sharing Decision
Roadmap for moving towards a low-carbon economy by 2050
10Global Commitment of
North and South
Subnational Governments
to Sustainable Development
The Network of Regional Governments for Sustainable Development, nrg4SD works tirelessly to champion
the work of subnational governments on sustainable development, including climate action. International
organisation representing over 600 subnational governments* (namely federated states and regional
governments) at the global level; nrg4D promotes understanding, partnerships and projects in sustainable
development and seeks greater international recognition of the important contribution of subnational
governments towards sustainable development. Member of the Organisations des Régions Unies/Forum
Global d’Associations de Régions (ORU/FOGAR), nrg4SD is the voice of ORU/FOGAR in the field of
sustainable development.
www.nrg4sd.org
Network of Regional Governments
for Sustainable Development
20, Bvd. Roi Albert II-Köning Albert II-laan
B-1000 Brussels, Belgium
Tel.: +32 (0) 2 553 70 69
Fax: +32 (0) 2 553 70 75
© nrg4SD – The Network of Regional
Email: nrg4sd@nrg4sd.org
Governments for Sustainable Development –
April 2011. All rights reserved.
The content of this document does not
necessarily reflect the detailed opinion of
each member of nrg4SD.
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